Strategic Plan for Risk Reduction: Srinagar to Corridor August 2018

STATE LEVEL ENDORSEMENT

“The magnitude of hazards and frequency of extreme weather events in has increased due to climate change. The traditional methods of disaster management need to be overhauled, earlier the traditional methods used to be relief, response and rehabilitation, but now the whole scenario has changed. We really have to upgrade our capacities and strengthen our people.”

Mr. Amit Singh Negi Disaster Management Secretary, Govt. of Uttarakhand (State Workshop on “Strengthening Resilience to Climate Change Related Disaster Risks” held in on 21st July 2017)

Uttarakhand Disaster Recovery Project Page i Strategic Plan for Risk Reduction: Srinagar to Karnaprayag Corridor August 2018

Table of Contents 1 Introduction...... 1 1.1 Overview of Area ...... 1 1.2 About this Strategic Plan ...... 3 1.3 Area and Community Profile ...... 5 1.4 Srinagar to Karnaprayag Corridor Risk Profile ...... 8 1.5 Strategy Implementation, Monitoring, Evaluation ...... 23 2 Strategies ...... 25 2.1 Overarching Strategies ...... 25 2.2 Specific Strategies for Fluvial Floods ...... 33 2.3 Specific Strategies for Earthquakes ...... 33 3 Links to National and State Level Plans ...... 40

Uttarakhand Disaster Recovery Project Page ii Strategic Plan for Risk Reduction: Srinagar to Karnaprayag Corridor August 2018

1 INTRODUCTION

1.1 Overview of Area

The Sringagar to Karnaprayag Corridor Strategic Risk Mitigation Plan presented here is intended to provide key strategies and their priority with respect to mitigation of the identified risks associated with earthquakes (High), flooding (Moderate), Landslides (None) and flash flooding (None). Greater detail is provided in the Risk profile below (Section 1.4).

The strategies are for municipal leaders and planners, and are not technical. They are easy to understand, realistic, and they are all achievable.

Successful implementation of the strategies will reduce the risk profile of this location.

There is a need to address the congested urbanized areas of the towns in this corridor notable amongst which are Srinagar, Kirtinagar, and Karnaprayag with respect to structural resilience to earthquakes.

In addition, there is a risk of flooding to infrastructure that has been built close to the floodplains in Srinagar and Kirtinagar areas that needs to be addressed.

The Hotspot is a corridor extending from Srinagar to Karnaprayag, and the extent of the Hotspot is shown in Map 1.

This corridor is developing rapidly and is a key gateway for tourists and goods into the Hills. A railway is planned and Karnaprayag is set to become the terminus for the hill railway. Hence, this hotspot has strategic significance.

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Map 1: The Hotspot boundary and extent from Srinagar to Karnaprayag

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1.2 About this Strategic Plan

This document is an output of the Disaster Risk Assessment. It is one of 14 strategic plans produced under the study that aim to reduce risk in the selected locations and serve as case studies for other areas of risk in the What is a Strategy? State. “… a plan of action designed to achieve a This Strategic Plan is built upon the hazard risk analysis undertaken by the project and formulated around key elements of the disaster risk management (DRM) framework embodied in the Sendia Framework. long-term or overall aim.” The DRM process is sequential (cyclic) in order to allow adaptive improvement over time in order to build back A strategy gives recognition to an overall better. It is also intended to incorporate a focus on pre-impact preparation through planning in order to mitigate goal and the way it might be achieved, risk associated with incidents before they occur. taking into account the resource This approach has been adopted at the National level. limitations and other constraints being faced. While response and recovery are recognised as being reasonably short time frame processes (hours and days to months), Mitigation and Preparation are seen as much more strategic processes over longer time frames What is an Action? (months to years). An Action is a key step to be taken in The National DRMP recognises three recovery periods after a disaster: a) Early – three to eighteen months, b) concert with other actions also needed for Medium – within five years and c) Long-term – within five to ten years. The concept of “build back better” points the strategy to succeed. to continuous improvement in the mitigation and preparation process and its implementation, over all time frames as funds and resources come to hand, risk profiles change, and skills and mitigation outcomes are increased or realised. Continuous improvement represents a learning curve reflecting successes and failure – what has worked, what has not worked and how do we do better into the future? By developing strategies around the separate phases of DRM and recognizing the opportunity for improvements over time it is possible to prioritize the actions that need to be taken. For each strategy presented here there is an initial list of key Actions include as the start of the process. The strategies offered here are intended to aid the Municipality and its citizens, local authorities, businesses, private residents, and local NGOs, with the intent of driving a ground up approach within a State level top down policy context. The challenge is for all organizations and individuals to take upon themselves the responsibility of being prepared and being better able to offset the risks and manage the consequences of these disasters.

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1.3 Area and Community Profile

1.3.1 Topography

The towns in the Srinagar- Karnaprayag hotspot lie on the east side of the in the Middle Himalaya physiographic zone. Srinagar is located in a valley region at an elevation of 560 metres above sea level with an almost flat terrain of low gradient slopes. Upstream of Srinagar are the towns of Rudraprayag, and Karnaprayag. Rudraprayag and Karnaprayag have mostly hilly terrain whereas Gauchar is nestled in a small valley with mostly flat terrain.

1.3.2 Climate

The Srinagar-Karnaprayag has a warm and temperate climate with an elevation varying from 560 metres to 1450 metres above sea level. The average temperatures range from a minimum of 6 °C and a maximum of 36 °C with temperatures reducing as the height increases. The annual rainfall in the region averages around 1400 mm with the bulk of precipitation in the summers.

1.3.3 Demographics

The hotspot has a population of 48106, a literacy rate of 80% and a sex ratio of 840 females to 1000 males (Census 2011). A majority of the population consists of non-workers (65%) i.e. homemakers, students, retirees, unemployed etc. A low but significant percentage of population are engaged in agriculture (10%). Most workers are engaged in the "Others" category which consist of the secondary and tertiary sectors (public and private). The decadal growth rate of the hotspot was 28.7% which is higher than that of Uttarakhand (18.8%) and (17.64%) indicating an inflow of migrants (census 2011 vs 2001). Moreover, this is in line with the state decadal growth trends where urban areas have shown higher population growth rates than rural areas.

1.3.4 Economy

The Srinagar-Karnaprayag corridor is en-route to Kedarnath and and hence a practical halt for religious tourists who contribute to the economy. Rudraprayag and Karnaprayag are also two of the five sacred river confluences in the Garhwal region and hence popular amongst religious tourists. Manufacturing too plays a role in Srinagar's economy with stone, furniture and steel goods being the important products and exports of the town. Srinagar also happens to be one of the important trading posts for the hill villages due to proximity and access to the main road. Also, there are some prominent educational centers in Srinagar such as Garhwal university and national institute of technology amongst others.

1.3.5 Development History

Srinagar came into the limelight in the early 16th century when it became the capital of the then Garhwal kingdom. It remained the capital for over 300 years until the British rule. A significant event in Srinagar's timeline occurred in 1893-94, a big landslide blocked the Birahi Ganga (a tributary of the Alaknanda) north of Srinagar Uttarakhand Disaster Recovery Project Page 5 Strategic Plan for Risk Reduction: Srinagar to Karnaprayag Corridor August 2018 to form a temporary lake. The dam would break close to a year later and wash away the old parts of Srinagar city. However, close monitoring of the situation ensured that the city could be evacuated in time and hence there was minimum or no loss of life. This corridor is getting a massive infrastructure boost with respect to road transport and rail transport in the near future. The Char Dham expressway project plans to connect the four dhams to with a two lane (each direction) road of a minimum width of 10 metres. This corridor’s road route connects with two of the most visited shrines of Kedarnath and Badrinath. In addition, the rail network from Rishikesh is getting built/extended till Karnaprayag. The growth in the pilgrim count has been unprecedented in the year 2018. With the new infrastructure, one can expect a massive influx of tourists into Rudraprayag and Karnaprayag during the tourist season. It is hence critical that the Srinagar-Karnaprayag corridor develops the capacity and resilience to safeguard the infrastructure and the resident/transient population.

1.3.6 Regional Context

The area defined under this hotspot stretches from Kirtinagar and Srinagar to Karnaprayag along the Alaknanda river and national highway 7. Other important towns in the hotspot include Rurdraprayag and Gauchar. The hotspot stretching from west to east is important as a halting spot for various tourists travelling to Kedarnath and Badrinath. From Rudraprayag, there is a road that leads to Kedarnath. Both Srinagar and Karnaprayag have 3 ingress routes. Due to the hilly terrain, it is found that services (Power, communications and transport) are often early casualties of an earthquake, landslide or flood event. Disruption of services lead to complications in relief and recovery efforts which in turn exacerbate the disaster risk.

1.3.7 Critical Facilities/Infrastructure

The hotspot is connected by air via Gauchar airport which is located on a flat strip of land at Gauchar. This airport does not operate regular flights but is commonly used for helicopters. However, the access road from Rudrarayag is highly susceptible to landslides at various sections which may cause delays in relief/recovery in a disaster scenario. There aren’t any railway stations in the hotspot yet but construction is going on for a rail line till Karnaprayag with stations at Rudraprayag. Below is a snapshot of lifeline buildings and helipads which are important from the disaster risk management perspective:

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Figure 1: Snapshot of lifeline buildings and helipads

Ten out of the 21 healthcare centers are sub-centers. The total lifeline buildings in this hotspot are approximately 310. In this hotspot, the sewage management is a mixture of piped systems and unorganized on-site sanitation systems with many instances of direct untreated sewage draining into the river. For cooking fuel, the urban areas mostly use LPG cylinders whereas in some rural areas firewood, cow dung and kerosene is still used. The Srinagar-Karnaprayag hotspot is broadly a mixture of rural and urban areas. The administrations governing the hotspot are diverse. Some of the disaster risk management strategies may require efforts that cut across administrative boundaries. Below is a general view of the different administrations involved in this hotspot:

Table 1 List of the different administrative areas within Srinagar to Karnaprayag hotspot

Rural Urban Block Tehsil Srinagar (NPP) Karnaprayag Karnaprayag Kirtinagar (NP) Agastmuni Rudraprayag Rudraprayag (NPP) Khirsu Srinagar Gauchar (NP) Karnaprayag (NP)

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1.4 Srinagar to Karnaprayag Corridor Risk Profile

1.4.1 Social Vulnerability

The social vulnerability has been ascertained by analyzing a combination of indicators that define certain characteristics or qualities (such as socio-economic and demographic attributes) within social systems that create the potential for loss or harm. According to this study, the towns of Rudraprayag, Gauchar and Karnaprayag are highly vulnerable whereas certain pockets in the mountain villages adjoining Srinagar and Kirtinagar towns are also vulnerable. Rudraprayag and Karnaprayag are also densely populated whereas Gauchar is relatively less densely populated. The vulnerable pockets near Srinagar/Kirtinagar are sparsely populated. Maps 2 and 3 illustrate the social vulnerability and population density in the Srinagar – Karnaprayag corridor.

1.4.2 Earthquakes

Srinagar to Karnaprayag City and its surrounds are classified as being High Risk with respect to earthquakes. Srinagar has a densely urbanized market area with many shopfront facades not tied up effectively with their respective buildings. Hence, these facades risk detachment from the building in the event of an earthquake. Karnaprayag has many structures built on top of the river bank at a height which aren’t earthquake resistant. These buildings are likely to collapse into the river in the event of an earthquake. Rudraprayag too has a hilly terrain which can pose complications in the event of an earthquake. Gauchar in contrast has a flat terrain and the built up area is away from the river. Maps 4 to 6 illustrate the earthquake risk in the Srinagar-Karnaprayag corridor.

1.4.3 Fluvial Floods

Fluvial flood Risk for Srinagar to Karnaprayag is seen as Moderate, which is largely a result of most of the built-up area being outside of the flood plains. Maps 7 to 10 illustrate the flood risk in the Srinagar-Karnaprayag corridor.

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1.4.4 Flash Floods

Flash flooding is not assessed to be a significant risk in the Srinagar to Karnaprayag urban corridor.

1.4.5 Landslide Hazard

Landslides pose negligible risk in the Srinagar to Karnaprayag corridor. However, there are certain chronic landslide zones (notably near Kalyasaur) which lie between Srinagar and Rudraprayag in the rural areas. These need to be addressed with respect to road accessibility issues since it is a key route for the pilgrim tourists. Given the negligible risk, strategies for landslide management have not been put forward explicitly for this hotspot area. Maps 11 to 14 illustrate the negligible landslide risk and exposure in the Srinagar – Karnaprayag corridor.

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Map 2: Integrated Social Vulnerability Index Srinagar-Karnaprayag Hotspot Area

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Map 3: Population Density Srinagar-Karnaprayag Hotspot Area

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Map 4: Earthquake Hazard Map - Srinagar-Karnaprayag Hotspot (100yr Return Period)

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Map 5: Earthquake Hazard Map - Srinagar-Karnaprayag Hotspot (475yr Return Period)

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Map 6: Earthquake Hazard Map - Srinagar-Karnaprayag Hotspot (1000yr Return Period)

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Map 7: Srinagar-Karnaprayag Fluvial Flood Hazard (Area G1)

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Map 8: Srinagar-Karnaprayag Fluvial Flood Hazard (Area G2)

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Map 9: Srinagar-Karnaprayag Fluvial Flood Hazard (Area G3)

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Map 10: Srinagar-Karnaprayag Fluvial Flood Hazard (Area G4)

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Map 11: Srinagar-Karnaprayag Landslide Susceptibility Map (Area G1)

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Map 12: Srinagar-Karnaprayag Landslide Susceptibility Map (Area G2)

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Map 13: Srinagar-Karnaprayag Landslide Susceptibility Map (Area G3)

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Map 14: Srinagar-Karnaprayag Landslide Susceptibility Map (Area G4)

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1.5 Strategy Implementation, Monitoring, Evaluation

1.5.1 Challenges in Implementation

Three challenges have been identified with respect to DRM in the Srinagar to Karnaprayag corridor and surrounds. In brief these are: Finance - Section 40(2) of the DM Act 2005 stipulates that every department of the State, while preparing the DM plan shall make the provisions for financing the activities proposed therein. The marginal cost involved in mainstreaming DRR in existing programs, activities and projects of the department are not very sizable and the departments may not find it difficult to arrange such funds. However, funds for disaster prevention and mitigation may not be available so easily unless the departments are able to negotiate such projects with the planning and finance departments with proper Cost Benefit Analysis (CBA). Technical – the way data and other information are acquired and transferred is still essentially dependent on manual processes. As a result, planning and awareness are both compromised, as is an ability to take an effective overview and achieve a ‘whole of government’ capacity to integrated strategic planning. Best practice statutory planning and regulation (including enforcement) is now done at this level using a spatial approach with a GIS and data sets available with all departments. It is time for the city to enter the digital age in this respect. First steps are related to recruiting young graduate qualified spatial planners and engineers to deliver access to the requisite GIS data sets and facilitate planning and regulation. Integrated mitigation, planning and preparation - An integrated approach across Government, the private sector and the community is required to ensure fully effective DRM. A simple example, is the need to pay much attention to Police & Fire, health specialisations; i.e. how to evacuate disabled, sick people or evacuation during fire/ smoke etc, During the development of any evacuation plan whether for city or rural, these specialisations need to be considered.

1.5.2 Proposed Management and Governance Structure

It is proposed that a Srinagar to Karnaprayag Hazard Mitigation Working Group is established by the Mayor/ or the Chairman of the Municipal Corporation as they can constitute a CDMC any time and then seek endorsement by the DDMA. The Municipal Commissioner/ or MNA (Mukhya Nagar Adhikari) should be the Secretary, with some Municipal Councilors, the city Chief of Police plus Head of relevant line Departments. City Trade Association, NGOs, CVOs, Civil Defense also need to be considered as possible members (not more than 20 people). This CDMC will take care & report to the District Disaster Management Authority (DDMA). Once established the Group is to become responsible for coordinating implementation of the DRM Plan and its associated strategies and undertake the recommended annual review and reporting process. In order to develop momentum for plan implementation, the Group needs to establish an appropriate timeframe for the meeting schedule as plan implementation begins, meeting quarterly, half yearly or annually, depending upon the hazard profile of the cities.

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The HMWG will meet annually to identify funding needs for the implementation of mitigation strategies, evaluate the effectiveness of the plan, and develop new mitigation strategies to reduce loss from natural hazards. The HMWG must have core level of funding to facilitate their own activities as well as giving effect to key recommendations at the municipal level. Reporting to the State (USDMA) on all such Expenditure and plans and accomplishments should also be an annual obligation.

1.5.3 Monitoring and Evaluation

The National DMP calls for all DMPs to be updated annually through a process of stakeholder review and revision. It is proposed here that Uttarakhand State, the Districts and Sub-Districts undertake an annual assessment and adopt a reporting process on the status and progress made in implementing the strategies adopted in taking the respective DRMPs forwards. If formulated as a report card then this can be used as both a governmental and Institutional device to drive mitigation, planning and preparation processes and yielding political and funding benefits to support the continuation of the process. For each strategy there is the need to determining an indicator of progress and success. It is international best practice for all strategies to have a monitoring and evaluation component so that progress and can be measured and reported upon. Such a key performance indicator (KPI) needs to be defined using realistic time periods and a quantitative rather than a qualitative measure. For each strategy presented here a Key Performance Indicator (KPI) has also been provided is a measurable value that demonstrates how effectively the strategy is being achieved. These KPIs are indicative and need to be agreed and adopted as implementation part of the implementation process the relevant stakeholders.

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2 STRATEGIES

2.1 Overarching Strategies

Overarching strategies are intended to apply to all disaster types and provide the backbone to a strong disaster risk management approach to mainstream administration.

2.1.1 Mitigation

Mitigation

STRATEGY DRIVER OUTCOMES KPI

Constitute a City Disaster Management Committee The key to effective cross organization A CDMC with responsibility to ensure all A committee established and (CDMC). collaboration is to make it top down DMP are formulated, understood and appropriate TOR agreed and signed off with designated tasks to be reported implemented with an obligation to on within 6 months. upwards, and then run a process of report to the respective city/ward and participatory engagement. state government.

Development & updating of Disaster Management At city level, DM Plans have not yet DM Plans developed for all sectors of DM Plans developed within 12 months. Plans at all levels within the Cities jurisdictions and been developed. the City. across its departments.

Development of City DM Plan/ Evacuation Plan The DMP not only needs to be up-to- A well prepared and tested DMP that is Development of the DMP within 12 (CDMP) and ensure it is widely distributed and date but it needs to be part of regularly reviewed, amended and months followed by regular annual understood. mainstream administration of the city. distributed. reviews.

Development and implementation testing of DMP needs to be a mainstream Demonstrated response capability Development of the DMP within 12 Hospital/ Mass Casualty Plans. component for both hospital and within the medical and para medical months followed by regular annual medical administrators as well as front support system of the city. reviews. line medical and support staff, including pharmacy and medical supply lines.

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Development of school DMPs with appropriate School children not only need to be Greater resilience at schools and with Development of the DMP within 12 simulations and debriefings. protected but are also a strong school children with demonstrated months followed by regular annual mechanism for dissemination of DRM response capability. reviews. thinking within families and the broader community.

Undertake an audit of the structural and life line The National Institute of Disaster A report on the results of a Twenty (?) percent of all life line support capability of all lifeline buildings to ensure Management makes clear that comprehensive assessments of the buildings assessed annually and a that all are assessed and that the results of the preparedness and mitigation measures structural resilience and life line comprehensive report provided to comprehensive assessments are reported1. should include retrofitting of life-line support capability of all lifeline government. buildings not only for saving lives of the buildings so that appropriate works can vulnerable people, but also to ensure be planned and budgeted for. prompt and efficient response to

disasters. Lack of information on this is an issue facing each hotspot and it needs to be a strategic priority so that appropriate works can be planned and budgeted for.

Hydro-power projects in ecological sensitive regions Hydro-power projects often negatively Minimum adverse impact to ecology of All proposed and existing hydropower like Srinagar must have comprehensive Disaster impact the ecology and disaster the region post development of future schemes to have a disaster impact Impact Assessment (DIA) along with EIA & it should vulnerability of the region due to less hydro-power projects. assessment mandated under the EIA be mandatory for project clearance. emphasis placed on DIA and EIA. process.

Hydro power projects must have muck disposal plan Currently hydro-power projects don't Reduction in debris in the event of a Muck disposal plans to be drafted and with proper site for muck disposal and plans for follow an appropriate muck disposal flood and reduced damage to ecology implemented within a stipulated time transportation of muck to the developmental sites plan, muck is hence disposed in due to inappropriate muck disposal. frame. should be well above the high flood zones. convenient nearby locations. This causes damage to the ecology and exposes infrastructure downstream to potential debris during a flood event.

2.1.2 Planning and Preparation

1 There are now web based assessments available specifically designed for this task. See for example, http://www.retrota.com/

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Planning and Preparation

STRATEGY DRIVER OUTCOMES KPI

Increase public awareness, understanding, support As noted above planning for risk A risk management capable A public awareness campaign designed & demand for hazard mitigation through the management and response is still to be community/stakeholder lessening the and sponsored within 12 months. development of a city wide sales and marketing undertaken. Community awareness, level of probable loss of life and assets. strategy and campaign focused on private sector preparedness and response capability is community groups, industry, city agencies, pilgrims predicated on risk awareness and right and tourists. response behavior. This process needs to be fast tracked and focused on. A brand awareness needs to be built along with a "need to know” desire using professional education and publicity expertise which is focused on a complete DRM cycle approach within key "market" sectors: schools and youth.

Training of school staff, hospital staff, municipal Training and testing of training through A well trained and capable response Annual training and simulation testing councilors, officials, community members, city/ simulations and post-simulation capacity within and across key developed within 12 months with municipal ward level ERTs, students and teachers. debriefing/review sessions is critical for organizations and institutions. annual testing and review. a deep response capacity within organizations and institutions.

Development of Standard Operating Procedure It is a first principal in organizational A well trained and capable response Development of organizational SOPs (SOPs) for DM within line departments, including OH&S that SOPs are developed for capacity within and across and lines of responsibility within 12 delineated responsibilities down to individual level, disaster response with simple and clear organizations. months; semiannual simulations and resource inventories and training. directions as to how to respond and assessments undertaken and reported who has what responsibilities. This on the organizations executive needs to include recovery planning management. such as the establishment of relief camps at identified safe zones and how these will be serviced.

Development of Early Warning Systems and Having effective and tested EWS A well founded, tested and serviced It should be established within 12 assessing their effectiveness within the city and capability is an important element of EWS for all critical response agencies months and can be tested during surrounds. response planning and preparation as and the community. regular mock exercises. even several seconds warning may lead

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to the saving of many lives. Such systems should be graded so that if there is a level of early warning this can lead to better short-term preparation by all agencies and citizens.

Sensitization meetings at municipal ward level/ To generate awareness about various A well awakened and enabled Sensitization and awareness camps on awareness camps. types of disasters and associated community to make effective decisions regular basis. vulnerabilities amongst community, about reducing loss from various making them better prepared. hazards.

Training of officials on damage & need assessment. Training to undertake a damage and The assessment lays down the Designed training for 12 months. needs assessment across the entire city foundation for a fresh start in City's Annually tested. is critical to undertaking a successful development efforts. assessment as a first step in building back better.

Sensitization of NGO/CVO & other civil NGOs, CVOs and other civil Trained volunteers of social Interaction and meetings with these organizations to disaster risk mitigation, planning organizations have a vital role to play in organizations can be a good resource organizations on regular basis. and preparation. disaster mitigation, planning and for District & State Govt. for all DM preparation. Frequently they have related activities. expertise and funding that strongly compliments the government capacity and capability and they also have strong international connections that can provide rapid response support and additional capability.

Building on the development of Standard Operating Evacuation planning, training and A well planned and trained response It should be conducted on regular basis. Procedure (SOPs) for DM within line departments, practice within key response agencies capability for all disasters that spreads undertake a program of evacuation planning, such as Police & Fire, Health and the across the City’s Public Safety Agencies training and practice within the City Public Safety private sector and hotels is seen as a and the private sector. Agencies such as Police & Fire, Health and the critical element in the planning and private sector. preparation process, particularly where multi-agency coordination is a vital component in response efficiency.

2.1.3 Response

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Response

STRATEGY DRIVER OUTCOMES KPI

Establishment/ Activation of City level Emergency A EOC is a combination of various line A well-established EOC directs the Establishment and functioning of EOC Operation Center (EOC). departments of Govt./ or other agencies operations at the disaster site and within 12 months. whose services are generally required coordinates at all levels to meet the during incident response. At District level, conflicting demand at the time of EOCs are well established, however, at City disaster. level, this still needs to be done. Consideration should be given to incorporating EOC capacity into the existing processes for managing pilgrimage movements.

Establishment of Incident Response Mechanism Effective response to emergency situation NDMA has developed an IRS as an Establishment and functioning of IRS at (IRS) at the city level. requires a high degree of coordination effective mechanism for performing City level within 12 months. various tasks of disaster response amongst various departments and and issued comprehensive agencies within and outside Government guidelines for the same. In the State at different levels for performing multiple of Uttarakhand, all districts have tasks in an integrated and time bound adopted & established IRS. However at City level, it is yet to initiated. manner for achieving specific results.

Establishment of Emergency Support Functions Disaster response is a multi-agency In order that these functions are In specific context of Uttarakhand, (ESF). function. The Department of Disaster performed in smooth, effective and important ESF should be identified with management is the Nodal Agency which fail proof manner. 12 months. will be responsible for managing/ coordinating all the functions of disaster response, while other agencies will provide necessary support and assistance in managing emergency situations.

Deployment of ERTs. Emergency response to be performed A smooth & effective response by Performance/ level of readiness should during disaster shall depend on the level of trained ERTs. always be checked on regular basis. disaster. At local level, the emergency response teams, consisting volunteers

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from Wards, NGOs, CVOs & other organizations can be deployed.

Development of regular set of simulation exercises Based on the given disaster scenario, the Simulation or mock drills reduces The City DMG can develop a simulation around a designated disaster and area within the simulation or mock exercises can be the gaps in preparedness & exercise calendar annually. city. performed at school, offices, market and increases the level of response. ward level to check the level of preparedness & readiness of various ERTS and community.

2.1.4 Recovery (Short-Term)

Recovery

STRATEGY DRIVER OUTCOMES KPI

Conduct damage & need assessment just after A damage and needs assessment across Foundation is laid for a fresh start in an Assessments should be undertaken disaster as the basis to planning the restoration & the entire city that includes all area's development efforts as well as to within 24 hours of disaster. improved disaster resilient housing, government structures and infrastructure support as reconstruct the damaged areas & buildings & cultural heritage in city. well as non-structural attributes is the contribute to the long term first step in building back better. development plan.

Provide community safety and effective Based on pre-disaster planning The affected community must be Members of ERTs can be designated to management of victims through the establishment adequate numbers of buildings/ open provided all assistance so as to ensure monitor the RF functioning. of relief camps at identified safe zones. space shall be identified where relief that they are able to live with dignity. camps can be set up during an emergency. This will be guided by the minimum standards of relief as laid down by the NDMA & the SDMA in terms of Section 12 & 19 respectively of DM Act.

Restoration of essential services: road connectivity, Disruption in essential services hamper Actions are taken swiftly with resolve in Recovery plan should be developed, electricity supply, water supply etc. recovery efforts and are a cause of order to retain community confidence tested annually. distress for the affected people. & minimize economic disruption.

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2.1.5 Recovery (Long Term)

Recovery

STRATEGY DRIVER OUTCOMES KPI

Strengthen the capacity of people and communities There is not at present a Post Disaster A Post Disaster Recovery Framework A first draft within three years. to reduce the risks and vulnerability & enhance Recovery Framework (PDRF) for the that links to specific hazard responses, social cohesion through a Post Disaster Recovery State, however, all responsible recovery Plans and the agencies Framework. agencies, the community and the responsible for pilgrim activities; as well private sector need to plan not for the as strategic growth strategies for the inevitable disasters that will occur but city and surrounds. also for recovery. The proposed City Disaster Management Committee (CDMC) needs to take the lead as part of its obligations.

Develop sector (e.g. defence, industry, tourism, Sector specific plans should be used to To quantify the needs for each of the Each plan should be developed within 12 agriculture, NGO etc) plans to restore & improve guide, plan & estimate resource sectors to enable a convergent and months. Updated annually. access to services & improve environmental requirements for recovery & coordinated recovery process wherein resilience in rebuilding communities and reconstruction at the sector level. Govt., NGOs & corporate sectors could community cohesion. Sector plans should also be developed bring in their respective capacities & into tools to monitor progress against capabilities to implement the plan. targets on an ongoing basis. Similarly, social sectors which include education, shelter, food & nutrition, health also frequently are neglected, so social sector planning is very essential. The scope of the sectoral plans include both the development deficit & the needs/ damage emerging out of the recent disaster.

Restore & improve disaster resilient housing, Disaster Resilient Housing (multi- The development of multi-hazard Initiate once response & relief phase is government buildings & cultural heritage in City. resistant) is a key priority in building resistant housing as a fundamental over. Monitoring through team of back, whereby the owners will be rebuilding block for the city and experts. Guidelines for owners should be responsible for and will manage their surrounds. developed within 12 months. own reconstruction, make their own choices & mobilize their own resources

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i.e. in other words an Owner driven Reconstruction (ODRC). After the June 2013 disaster, this exercise was carried out by the State Govt., where more than 2500 houses were reconstructed across the State under ODRC.

2.2 Specific Strategies for Earthquakes

2.2.1 Introduction

Earthquakes of any magnitude in highly urbanized areas bring a particular challenge that means many people and much property is at risk as result of the high population and building density. Many parts of the Srinagar-Karnaprayag corridor are definitely in a category where serious loss to life and property damage demands full attention to both structural and non-structural solutions in reducing risk and improving resilience. Rudraprayag and Karnaprayag being two of the five sacred river confluences in the region are particularly congested due to rapid urbanization encouraged by high returns from real estate during the tourist season. It is in these two cities where strategies to mitigate risk of earthquakes are critical to the adequate safeguarding of life and property.

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2.2.2 Earthquakes - Planning and Preparation

Earthquakes - Planning and Preparation

STRATEGY DRIVER OUTCOMES KPI

Design & develop public education campaign for Just as DM needs to become Create community resilience through An awareness campaign plan should emergency preparedness & hazard mitigation for mainstream in the thinking and actions emergency preparedness & hazard be developed for 12 months. those who live & work in Srinagar to Karnaprayag of Government institutions so should mitigation awareness programs via cities and surrounds. Disaster response awareness in communication channels such as TV, businesses and the community print, pamphlets, street plays etc. generally be integral to their daily lives. This awareness will then play a key part in reducing vulnerability, raising resilience and reducing impacts of a disaster as a result of people responding in a well informed and disciplined manner. Significant research2 shows that “shock” from traumatic situations can be very debilitating but can be overcome through awareness and training.

Increase the community resilience by expanding the CERTS are seen as excellent first Increased community resilience Formation of CERTS within 6 months & number of Community Emergency Response Teams responders as they are first on-site, through first response capability by their training. follow-up trainings (CERT) in the Srinagar to Karnaprayag corridor and have in-depth knowledge of resources community members. every 3 months. surrounds. and victim location likelihood, strongly motivated and effective networks. Funding remains an issue. As per the guidelines of GOI, 10% of State Disaster Response Fund (SDRF) can be spent on Training & capacity Building programs; Every DDMA needs a yearly allocation out of SDRF for this purpose.

2 See for example: Laurence Gonzales, Deep Survival , 2017; Uttarakhand Disaster Recovery Project Page 34 Strategic Plan for Risk Reduction: Srinagar to Karnaprayag Corridor August 2018

Modify evacuation plans to incorporate City Public Evacuation plans need to be developed A well updated & documented Ongoing process. Safety Agencies such as Police & Fire, Health hazard specific & in evacuation plan can reduce the life loss. departments. consultation/collaboration with the specialized agencies.

Train employees & practice City Facility Evacuation The evacuation plans need to be well Increases community resilience Ongoing process. Practice every 3 Plans. disseminated amongst community, months. business community, schools, city facility centers , offices.

2.2.3 Earthquakes - Mitigation

Earthquakes - Mitigation

STRATEGY DRIVER OUTCOMES KPI

Strengthen planning, management and regulation Several State & National level Preparation & updating of Hazard Complete within a three year period of EQ risks on infrastructure through improved Institutes/ Organizations in the State, Zonation maps of the City as the basis mapping of all areas in the City with understanding of existing and future risk (data) to are engaged in the researches to planning and preparation procedures annual reporting of progress against private and public infrastructure, transport and concerning hazard zonation & and training simulations. an agreed plan of priority areas. communications. risk/vulnerability assessment of the State, however the recommendations/ results of the studies are not commonly available to the concern authorities. Mapping should be done on a priority area basis focused on high density or vulnerability areas first.

Review current building standard compliance and Enforcement of the most current Effective compliance to building codes Ongoing process. Review every 6 develop mechanisms to strengthen levels of Building Codes Standards to protect the and statutory planning zonation and months by State Govt. compliance. built environment in the City is required codes for the City and surrounds, as is retrofitting. The State has amended building by-laws and the Town & Country Planning Act, however due to non-compliance/ or lack of

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enforcement by the concerned authorities, the habitation of unsafe/high risk areas is expanding.

In line with the overarching strategy to audit lifeline The seismic safety of all lifeline A detailed & comprehensive safety Assessment should be completed buildings, formulate a policy for retrofitting of buildings must be assessed in a time assessment of buildings/ structures to within 3 years. existing public facilities & services according to bound manner. A approach should be determine type of retrofit technique. contemporary standards. to selectively retrofit lifeline structures and buildings on the basis of priorities to be fixed by the Govt.

Enforce Earthquake Safe Construction Technology All departments/ agencies must ensure Appropriate mechanism for compliance Ongoing process in the City and incentivize with insurance benefits that construction undertaken by their & review of all construction designs and/ or utility access. depts. and agencies under their control submitted to ULBs/ Development strictly comply with the standards & Authorities/ construction agencies.

specifications prescribed by the Bureau of Indian Standards & further included in the NBC.

As part of the overall awareness campaign, Significant harm can occur to people in Improved resilience to harm and likely Ongoing process emphasize reduction of non-structural hazards in situations where non-structural damage as a result of awareness and homes, schools, business centers & offices of the hazards fall onto them during an small amounts of city. earthquake. Awareness and preparation/investment. subsequent repositioning/fastening etc. can significantly reduce the risks of damage.

2.2.4 Earthquakes – Response

See strategies listed in Overarching Strategies above.

2.2.5 Earthquakes - Recovery (Short & Long Term)

See strategies listed in Overarching Strategies above.

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2.3 Specific Strategies for Fluvial Floods

2.3.1 Fluvial Floods – Mitigation Strategies

FLUVIAL FLOODS - MITIGATION

STRATEGY DRIVER OUTCOMES KPI

Improve the understanding (and access to data) of Limited access to critical information A scientifically accurate assessment of Flood assessment completed within 12 flood risk3 as the basis to strengthening planning, including a detailed flood assessment flood levels and likelihood as well as months. management and regulation of flooding impacts. base on accurate survey data results in testing of mitigation strategies as the poor planning and management, basis to formulation of flood including sand extraction (mining). management policies within the city.

Srinagar to Karnaprayag Corridor to develop a NDMA has issued guidelines for Strategy formulated and implemented. Flood risk strategy drafted in 12 months, Municipality Flood Risk Mitigation Strategy which management of floods, but there is no Formulation and adoption of flood finalized in 18 months following the includes funding mechanisms, KPIs and auditing and adoption of these guidelines/ management policies within the City. completion of the flood risk assessment. reporting processes. regulations in the Srinagar to Karnaprayag corridor.

Develop compliance policies and associated The Municipality via the State is A regulatory process and auditing A total number of agreed sites audited regulations that provide realistic incentives responsible to incorporate NDMA program of compliance. each year for compliance. Follow up supported by regular auditing and reporting of guidelines/ provisions into the Building where non- compliances recorded, compliance to the State Government. by-laws & to implement. As yet this has including imposition of fines. not happened in the Srinagar- Karnaprayag corridor.

3 Note that UDRP for flood risk was undertaken at a Block level with no access to suitable high resolution and accurate elevation and drainage data (the Cartosat satellite imagery used has an accuracy is 8m vertical). The flood maps produced cannot capture some of the localized effects (particularly for rainfall ponding) that are critical in flood modelling and the level of detail needed for drainage planning at the city level. The state government has procured for a LIDAR data covering from to Kedarnath – it should be available in a few month time. Ideally the flood modelling should be advised to be re-done in high exposure areas (e.g. Srinagar, Rishikesh, Haridwar) if possible using a 2D models for the larger floodplains (Rishikesh, Haridwar) and using accurate elevation of embankments and detailed operation rules of the barrages and other structures. The UDRP has provided discharge return periods (mean, std. dev) for 120 locations across the state that should be valuable for any other studies downstream. Gauging records can help confirm those results in more locations but will take time to acquire (basically 30+ years of data are required for proper extreme statistics). Uttarakhand Disaster Recovery Project Page 37 Strategic Plan for Risk Reduction: Srinagar to Karnaprayag Corridor August 2018

Construction of properly designed RCC structures, Constant river bank erosion causes an River bank erosion is prevented paving Site identification complete and concrete slabs and masonry retaining structures are increase in the flood plain and becomes the way for sustainable river bank construction to be completed within 24 recommended along the Alaknanda river bed for a significant hurdle for river bank development. months. reduction in undercutting and river bank erosion. development apart from risking collapse of the river bank.

Develop a City - Insurance Sector - Private sector Positive incentives are required to A measured reduction in non- Increase of properties (target % rate of dialogue around flood mitigation and risk encourage community engagement in compliance as designated in the increase to be determined by State management incentives through premium adopting flood risk policies and Municipality flood risk management Govt) taking out flood risk insurance structures and assessment payout adjustments for complying with regulations. strategy targets. policies annually. proven compliance.

Develop a trans-institutional legal framework for In developing a Strategy there is the An easily understood and simple set of A draft set of Laws within 12 months. A flood management at the State and Municipality need to consider trans-jurisdictional approval and regulatory processes final set of ratified laws with 24 months. level. boundaries across departments and bound in law that can operate at the A set of policies and regulations drafted state agencies, noting that the State of municipality level. and ratified in parallel. Uttarakhand does not have a legal framework. But even more so, the framework when developed needs to be clear as to institutional responsibilities and ensure an easily understood and simple set of approval and regulatory processes.

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2.3.2 Floods - Planning and Preparation

FLOODS - PLANNING AND PREPARATION

STRATEGY DRIVER OUTCOMES KPI

Develop a municipality wide Flood Risk Mitigation A lack of funds and a strategic approach A well thought out strategy for funding The Flood Risk Mitigation Strategy Strategy which includes funding mechanisms and to addressing flood risk is still an issue and delivering on risk reduction drafted with 12 months and enacted KPIs with auditing and reporting processes. in Srinagar to Karnaprayag. The lack of associated with flood mitigation and within 24 months. scientifically based data and risk response.

analysis at the fine scale (see above in Overarching Strategies) is part of the reason but there is still a need to develop a strategy to underpin funding and the planning of response strategies based on the scale of the floods and the desirable levels of early warning.

Develop public-private partnerships for addressing There is a lack of funds and CSR driven Corporate Social Responsibility (CSR) The Flood Risk Mitigation Strategy Flood Risk Mitigation Strategy issues, which include partnerships in addressing flood risk. activities from the Corporates/ drafted with 12 months and enacted funding mechanisms, awareness and the Industries and funds from many bigger within 24 months. implementation of mitigation projects. NGO’s or CVO’s will be harnessed for CSR partnership agreements drafted future mitigation projects. with three large Companies and three local NGOS within 18 months.

Develop policies and programs intended to increase At municipal ward level, there is an An increase in the number and Six (6) certification programs run per 12 the number and preparedness of CERTS at a ward opportunity for CERTs to be formed preparedness of CERTS at a Ward level months period with a 80% or greater level. comprising community members. This lowering the risk of loss of life and accreditation. should be done as part of the Flood property during incidents. DRM Plan.

Test and revise evacuation plans across the city Mock drills are a critical element of An increase in the number and A mock drill run in every ward every 12 through a process of mock disaster drills and a city DRM planning and training. With the preparedness of all participants in an months. wide review workshop following each drill focused help of local NGOs/CVOs, local incident thereby lowering the risk of A citywide drill run every 2 years. residents mock drills can be conducted

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on gleaning strengths, limitations, opportunities to on regular basis to check the evacuation loss of life and property during improve and risks if these are not realised. plans. incidents.

Development & updating of Disaster Management At City Level, DM Plans have not yet Flood DM Plans developed for all Flood DM Plans developed within 12 Plans at all levels within the Cities jurisdictions and been developed. sectors of the city. months. across its departments.

2.3.3 Floods – Response

See strategies listed in Overarching Strategies above.

2.3.4 Floods – Recovery

See strategies listed in Overarching Strategies above.

3 LINKS TO NATIONAL AND STATE LEVEL PLANS

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